REPORT OF THE SECRETARY-GENERAL ON IMPLEMENTATION OF SECURITY COUNCIL RESOLUTIONS 2139 (2014), 2165 (2014), 2191 (2014) AND 2258 (2015) (S/2016/460).

Document Title: Implementation of Security Council Resolutions 2139 (2014), 2165 (2014), 2191 (2014) and 2258 (2015)

Code: S/2016/460

Date: 19 May 2016

Period of Time and Topic: This Secretary-General’s report gives account of major developments on the ground in the Syrian Arab Republic between 1-30 April 2016, during which overall progress for humanitarian support was small and violations of international humanitarian and human rights law have increased largely due to the resumption of active conflict.

Women, Peace and Security Introduction

While the report gives a detailed account on human rights violations against civilians by both the Syrian government and non-state armed groups, and informs on humanitarian provisions, it does not apply a gender lens to consider how women are specifically affected by the deteriorating security and humanitarian situations, nor does it provide sex-disaggregated data. The report does not include any specific references to the Women, Peace and Security (WPS) agenda, such as mentions of WPS resolutions, and only sporadically reports on female casualties, in three instances.^[1] Stating that the reported killing of civilians and other violations of international human rights law and international humanitarian law has risen sharply during the reporting period, after a relatively calm previous reporting period, the report does not refer to human rights violations targeting women, including sexual and gender-based violence, at all.^[2] Given these very limited references to the situation of women, which has not improved compared to the last reporting period, one can assume the continuance of an overall unawareness for the importance of gender-sensitive reporting to assess how women, men, girls and boys are affected differently and to cater to their specific security and humanitarian needs.

References in Need of Improvement and Missed Opportunities

Reporting on women’s concerns in accordance with the WPS agenda could have been stronger on several occasions.

Human Rights

Considering the severe security situation for civilians due to continuing deliberate targeting of civilians and civilian infrastructure, the report could have further specified how women are adversely affected, particularly by referring to the use of sexual and gender-based violence (SGBV) as a weapon of war.^[3] Additionally, the report could have focused more strongly on the situation of internally displaced persons (IDPs), including references to the security concerns of displaced women and the prevalence of sexual violence in IDP camps.^[4] Ideally, the report would have provided information on whether gender-sensitive provisions to ensure women’s safety are discussed and integrated into any human rights monitoring and protection efforts, including in IDP camps.

Humanitarian Response

Several categories of humanitarian assistance are detailed in the report, but it remains unknown whether specific provisions for women or girls are included, or if women or local civil society organizations, particularly women’s civil society, were consulted in the design and implementation of the humanitarian assistance.^[5] These include, “basic services” provided by the Government of the Syrian Arab Republic, assistance delivered by NGOs, medical attention and supplies, midwifery kits, and other support provided by the UN and partner organizations.^[6] Notably, assistance in terms of baby milk and midwifery kits is referenced throughout,^[7] but not the midwives or pregnant and lactating women themselves. If women aren’t integrated into the humanitarian aid design and implementation processes, it’s possible that services and other provisions are inadequate or inappropriate, further compounding the deteriorating situation. This resolution missed an opportunity to recall Resolution 1889 (2009), which details the importance of women being integrated into aid management and planning, and how not only Member States, but also international and regional organisations, should take further measures to improve women’s participation in this regard.^[8]

The report would have greatly benefited from commenting on whether any of the UN agencies or partner organizations, including OHCHR, WFP, WHO, UNICEF, UNRWA and UNHCR, had conducted gender-sensitive needs assessments to identify whether and how women are affected differently in order to effectively tailor humanitarian assistance to their needs. In its mention of the continuous challenges regarding humanitarian access, including administrative difficulties in obtaining visas,^[9] the report would have been stronger had it specified whether any international or national non-governmental organizations were targeting women’s health issues,^[10] including reproductive health and family planning provisions and women’s rights advocacy, and if they faced additional challenges or restrictions.

Inability to access a majority of areas needing medical support is detailed across the report. The discussion would have been stronger if it was inclusive of information specifically regarding women’s needs, such as: secure access to sanitation and hygiene facilities; physical and mental health assistance, including reproductive health, family planning; and maternal health services. Future reporting should seriously consider applying language contained in Resolution 2242 (2016), which recognizes the importance of gender programming in humanitarian responses and urges relevant actors to ensure women and women’s groups participate meaningfully in the programming and provision processes.^[11] Further, the report would have benefited from detailing whether specific provisions have been made or are planned to assist women in hard-to-reach areas and besieged areas.^[12]

Ideal Asks for WPS Transformation

Future reports must reaffirm, enhance and strengthen the Security Council’s commitment to fully and effectively incorporate the WPS agenda into all conflict resolution and peacebuilding efforts in Syria, including through women’s participation and leadership in all decision-making processes and support for women’s civil society organizations. Given the deteriorating security and humanitarian situations in Syria, including the indiscriminate targeting of civilians and civilian infrastructure, specific attention must be paid to women’s participation in all security-related matters, including addressing the security needs of internally displaced women and girls. Future resolutions and reporting on the implementation of the cessation of hostilities, including by the ISSG ceasefire task force and ISSG humanitarian task force, as well as on the likely establishment of ceasefire monitoring mechanisms must be reflective of the voices of local populations and account for women’s participation in design and implementation strategies.

Given the rapid dissemination of violent extremist ideology and the unimpeded attacks by the Islamic State in Iraq and the Levant (ISIL, also known as Daesh), Al Nusrah Front (ANF), and individuals, groups and entities associated with Al-Qaida, future resolutions must be reflective of the latest WPS Resolution 2242 (2015), which recognizes the importance of women’s participation in countering violent extremism (CVE).^[13] Recognizing the adverse impact of terrorism and violent extremism on women’s and girls’ human rights, future resolutions on Syria must consider consultations with women’s civil society organizations and ensure women’s participation and leadership in developing and implementing CVE strategies. The Security Council must further mandate international actors to conduct and support gender-sensitive research on the drivers of radicalization, particularly for women, and on the impact of counter-terrorism strategies on women’s rights and the operation of women’s civil society organizations.